Letterhead DEP BOSTON-BAS

Letterhead DEP BOSTON-BAS

DEPARTMENT OF ENVIRONMENTAL PROTECTION

BUREAU OF MUNICIPAL FACILITIES

Guide to

COMPREHENSIVE WASTEWATER MANAGEMENT PLANNING

January 1996

Acknowledgments

The preparation of this guidance was undertaken by Kevin Brander, John Correia, and David Burns, staff from the DEP Bureau of Municipal Facilities. The writers would like to thank all those within DEP who provided valuable comments, as well as other groups including the American Consulting Engineers Council, Massachusetts Environmental Policy Act Unit, Department of Environmental Management, Office of Technical Assistance, and the Massachusetts Water Resources Authority, who all provided insightful comments and information. Many improvements were made to the draft as a result of their input.

FOREWORD

Planning for wastewater treatment and disposal facilities is a critical challenge for each community. Such facilities are inextricably linked to protection of public health, protection of water resources, and comprehensive growth and development plans in each community. As cities and towns are faced with considerable financial demands and a broad range of social and economic issues, they are being forced with increasing frequency to make difficult decisions on the allocation of public funds among competing interests. It is therefore important that decisions made on planning, design, construction and maintenance of wastewater facilities be the most environmentally sound and the most cost effective. Comprehensive wastewater management planning must also reflect the collective input of citizens, local officials and other interested "stakeholders" who are empowered to manage the growth and development in their communities. This guidance is intended to assist communities in developing and evaluating wastewater alternatives to meet their long term needs.

DEPARTMENT OF ENVIRONMENTAL PROTECTION

GUIDE TO

COMPREHENSIVE WASTEWATER MANAGEMENT PLANNING

TABLE OF CONTENTS

1. Introduction

1.1 Purpose

1.2 The Comprehensive Wastewater Management

Planning Process

1.3 The Process and the Stakeholders

1.4 Regulatory Requirements

1.4.1 State Basin Planning

1.4.2 Other Water Resources Planning

1.4.3 MEPA Requirements

1.4.4 Permits

1.5 State Revolving Fund

2. Preplanning Activities

3. Plan of Study

4. Comprehensive Wastewater Management Plan

4.1 Assess Current Conditions

4.1.1 Existing Conditions in Planning Area

4.1.2 Existing Wastewater Flows and Treatment

4.2 Assess Future Conditions

4.2.1 Planning Period

4.2.2 Land Use

4.2.3 Demographic and Economic Projections

4.2.4 Forecasts of Flows and Wasteloads

4.3 Wastewater Needs/Problem Identification

4.3.1 On-site Wastewater disposal

4.3.2 Wastewater Collection Systems

4.3.3 Wastewater Treatment and Effluent Disposal

4.4 Develop Alternatives

4.4.1 Baseline: Optimize Existing Facilities

4.4.2 Regional Solutions

4.4.3 Wastewater Alternatives

4.4.4 Alternative Technology

4.4.5 Screening of Alternatives

4.5 Evaluate Alternatives

4.5.1 Evaluation of Costs

4.5.1.1 Present Worth

4.5.1.2 Equivalent Uniform Annual Cost

4.5.1.3 Cost Effectiveness Analysis

4.5.2 Environmental Evaluation

4.5.2.1 Direct Impacts

4.5.2.2 Indirect Impacts

4.6 Additional Guidance on Evaluation of Alternatives

4.6.1 Institutional Arrangements

4.6.2 Flow and Waste Reduction

4.6.3 Decentralized Facilities

4.6.4 Sewers

4.6.5 Residuals Disposal

4.6.6 Location of Facilities

4.6.7 Revision of Wasteload Allocation

4.6.8 Phased Construction

4.6.9 Flexibility

4.6.10 Reliability

4.7 Plan Selection

4.7.1 General

4.7.2 Comparison and Ranking of Proposals

4.8 Recommended Plan

4.8.1 Detailed Recommended Plan

4.8.2 Environmental Impacts

4.8.3 Institutional Impacts

4.8.4 Preliminary Design Criteria

4.8.5 Financing Plan

4.8.6 Implementation Plan

4.9 Public Participation

4.9.1 Relationship between Proponent and Public

4.9.2 Requirement for Public Hearings

4.9.3 Summary of Public Participation

References

Appendices

Appendix A Present Worth Calculation Examples

Appendix B Massachusetts Regional Planning Agencies

Appendix C Flow and Waste Reduction

Appendix D MEPA Information

DEP Wastewater Planning Guidance - 1/96

1. INTRODUCTION

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DEP Wastewater Planning Guidance - 1/96

1

DEP Wastewater Planning Guidance - 1/96

1.1 Purpose

DEP Wastewater Planning Guidance - 1/96

This document is intended to be used as a guide in assisting municipal officials, consulting engineers, citizens groups, and other interested parties in developing comprehensive wastewater management plans. This guidance provides communities with sound procedures for determining appropriate and balanced solutions to their wastewater disposal needs which will allow them to protect their water resources and the public health of their citizens. The solutions to a community's wastewater problems may consist of a decentralized approach using on-site treatment and disposal; a more centralized approach with collection sewers and a wastewater treatment plant and discharges to groundwater or surface water; or, as is more typical, a combination of the two. This guidance also details a planning approach which will serve to comply with the enforceable requirements of the Clean Water Act as well as the requirements of the financial assistance program of the Massachusetts Water Pollution Abatement Trust.

DEP Wastewater Planning Guidance - 1/96

DEP Wastewater Planning Guidance - 1/96

While this guidance presents a comprehensive methodology for producing a wastewater management plan, it must be noted that the level of detail and ultimate scope of the wastewater management plan will depend to a large extent on the nature, scale, and location of the wastewater needs to be assessed. In this regard, communities are encouraged to contact and meet with the Department of Environmental Protection and regional planning agencies to discuss the scope of the work and to utilize all available technical and financial resources.

DEP Wastewater Planning Guidance - 1/96

1.2 The Comprehensive Wastewater Management Planning Process

The comprehensive wastewater management planning process is the process whereby current and future wastewater needs are evaluated, wastewater management alternatives are developed which will meet these needs, and a final plan is chosen through careful comparison and evaluation of the alternatives. The process must include the necessary steps in ensuring that the planning effort results in the most cost effective, environmentally sound wastewater management plan. Such a process is shown on the flowchart in Figure 1, and includes the primary tasks necessary in comprehensive wastewater management planning. The initial impetus for wastewater planning may arise from a community wishing to evaluate and meet their wastewater needs, or as the result of some regulatory enforcement action. In either case, the final recommended plan must comply with regulatory requirements and provide for sound wastewater management over the twenty year planning period.

DEP Wastewater Planning Guidance - 1/96

DEP Wastewater Planning Guidance - 1/96

1.3 The Process and the Stakeholders

The planning process should elicit participation by all "stakeholder" groups, who will ultimately bear the economic, environmental, and institutional consequences of the recommended plan. A vital component of any planning effort is the ability of the community, environmental agencies, and the consultant to advise, inform, and educate stakeholders on the myriad of technical, environmental, and fiscal issues presented by wastewater management alternatives. The process includes many critical decision points which can become significant obstacles in achieving an implementable plan if stakeholders are not directly involved in the decision-making process. Oftentimes, decisions must be made at the community level with regard to future growth, environmental tradeoffs, and costs that will govern the realm of wastewater management alternatives which may be pursued. DEP, MEPA, and other regulatory agencies provide technical review of facilities planning documents and also ensure that the recommended plan will comply with regulatory requirements which prescribe minimum standards for protection of the environment. While their role is to provide review and guidance, it is important to note that the community, representing the primary stakeholders, are the group that most often decides the fate of wastewater management plans. As such, the participation of groups such as elected officials, planning boards, boards of health, town meeting representatives, and citizens action committees should be brought into the comprehensive wastewater management planning effort as early as possible, and these groups should be continually apprised of the development of the plan.

1.4 Regulatory Requirements

1.4.1 State Continuing Planning Process and Basin Plans

Under the Massachusetts DEP Watershed Management Program, the Office of Watershed Management (OWM) carries out continuing watershed-based resource assessments, including an evaluation of point and non-point pollution sources. This planning initiative expands upon the basin plans developed pursuant to section 303(e) of the 1972 Federal Water Pollution Control Act. The Watershed Management Plan establishes the effluent limitations which must be met by publicly-owned treatment works (POTW) to comply with applicable requirements of federal, state, and local law. All wastewater planning efforts should initially involve a review of the watershed management plan and the final recommended plan must be consistent with the watershed management plan so that water resources are properly protected.

1.4.2 Other Water Resource and Wastewater Planning

Wastewater management plans should also include a review of other pertinent plans including:

·  The Massachusetts non-point source management plan developed pursuant to section 319 of the Clean Water Act;

·  Non-point source management plans conducted by regional planning agencies pursuant to section 208 of the Clean Water Act; and

·  Local water resource planning developed by the Department of Environmental Management (telephone 617-727-3267).

1.4.3 Massachusetts Environmental Policy Act (MEPA)

Comprehensive wastewater management plans are subject to the MEPA regulations, (301 CMR 11.00), which establish thresholds, procedures and a timetable for public review of the environmental impacts of activities funded or permitted by state agencies. The MEPA process requires public agencies and project proponents to fully consider the environmental impacts of wastewater collection, treatment, and disposal projects, and to minimize and mitigate adverse impacts. The goal of the MEPA process is to elicit public comment on the direct and indirect environmental impacts of the range of wastewater alternatives, and to ensure that the planning effort is consistent with local and regional planning and applicable environmental regulations. Mitigation measures to minimize any adverse environmental impacts identified through the public participation process may be formally required through the issuance of a Certificate from the Secretary of Environmental Affairs.

The MEPA process includes the preparation and submittal of an Environmental Notification Form (ENF), which provides an overview of the environmental impacts of the project, and may also require an Environmental Impact Report (EIR), which is a more detailed assessment of potential environmental damages and benefits. Wastewater management project proponents may be required to do an EIR if the projects are "categorically included", if any of the thresholds listed in 301 CMR 11.25 are exceeded, or if so determined by the MEPA office based on public comment. In some instances, planning efforts may sufficiently complex as to warrant a determination by the MEPA office that a project is "major and complicated", and the regulations in this case provide special procedure provisions which provide flexibility to shape the plan review process and associated timeframes so as to accommodate special needs or circumstances. MEPA regulations and thresholds should be reviewed so that the MEPA process is appropriately incorporated into the wastewater planning effort. It is important to note that the comprehensive wastewater management plan and the EIR may often be consolidated efforts in the interest of streamlining and efficiency, and draft and final plans can then be issued jointly with the draft and final EIR documents for ease of review, comment, and participation by the public.

Appendix D includes the "MEPA Clock", which summarizes the MEPA process. The project proponent should consult with DEP and the MEPA office (EOEA, 100 Cambridge St., 20th Floor, Boston, MA 02202. Telephone 617-727-5830) at the initial stages of the planning effort to ensure that the appropriate coordination between wastewater management planning and MEPA review occurs.

1.4.4 Permits

In evaluating alternatives for wastewater management, the wastewater management plan must evaluate and discuss the need for federal, state, and locally issued permits. Depending on the specific alternative, a broad range of federal, state, and local permits may be required for implementation. Table 1 displays a listing of some of the permits, licenses, and approvals which are commonly required for construction of wastewater management facilities. It is important to note that this list is by no means all-inclusive and additional permitting may also be required. The project proponent should meet with DEP and the MEPA unit early on in the planning process to identify key permitting requirements.

1.5 Massachusetts State Revolving Fund (SRF)

The Massachusetts State Revolving Fund Program is an outgrowth of the Water Quality Act of 1987, which amended the 1972 Federal Clean Water Act. These amendments terminated the federal construction grants program and established a program for funding revolving loan programs at the state level. Under the current SRF program, the state uses monies to offer no interest or low interest loans to communities to subsidize wastewater projects. The program provides for the funding of comprehensive wastewater management planning to those communities who meet the eligibility requirements and have been placed on the state fundable priority list. The priority list is established each fiscal year based on information submitted by each community detailing their need for planning, design, and construction of wastewater facilities. Project proponents are strongly encouraged to contact the DEP Bureau of Municipal Facilities (BMF) prior to initiating any planning effort to submit a project evaluation form and apply for financial assistance. BMF is located at the DEP Offices at One Winter Street, Boston, MA 02108 and the telephone number is (617) 292-5793.

TABLE 1

Permits, Licenses, and Approvals

commonly required in design and construction of wastewater management facilities

FEDERAL

Activity/Impacts Permit Agency

Surface Water Discharge NPDES Permit EPA

Impact on Navigable Waters ACOE 404 Permit ACOE

STATE

Activity/Impacts Permit Agency

Wastewater Management Planning Approval DEP

Wastewater Management Planning MEPA Certificate MEPA

Surface Water Discharge State Surface Water Discharge Permit DEP/BRP

Groundwater Discharge Groundwater Discharge Permit DEP/BRP

Waterways Activities Chapter 91 Waterways License DEP/BRP